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‘Not in My Back Yard’: The Challenge of Meetingthe Housing Needs of Offenders

Paul Thompson*

Summary: Evidence points to the fact that a lack of suitable housing andaccommodation can increase the risk of offenders going on to commit further crimes.However, people continue to have concerns about known offenders, particularly sexoffenders, living within communities. How do we attempt to meet the housing needsof offenders while at the same time providing reassurance and protection to localcommunities?

Keywords: Approved accommodation, probation, resettlement, communityinvolvement, housing, homelessness, reoffending, high risk, sex offenders, NorthernIreland.

Introduction

PBNI supervises around 3,600 offenders in the community subject to arange of court orders and licences (PBNI, 2014). The majority of theseoffenders will be accommodated within the community, usually with theirown families and in their town of origin. However, for some offendersreturning to their families and previous homes is simply not possible. Thismay be because of family and relationship breakdown during a period incustody or because of restrictions in relation to accommodation beingimposed on an individual. For example, civil court orders such as SexualOffence Prevention Orders can be used to place all kinds of restrictionson the behaviour of the offender. These might include, for example,restrictions on where an offender can reside and who they can associatewith.

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* Paul Thompson is an Assistant Director with the Probation Board for Northern Ireland (PBNI)based in Belfast. Email: [email protected]

IRISH PROBATION JOURNAL Volume 11, October 2014

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So if an offender is not returning to his or her home and family, howis the risk of reoffending managed? What is the role of the agenciesinvolved in the supervision of offenders in the community, and inparticular what is the role of probation? Will communities ever embracethe idea of known offenders living in their midst?

This paper considers the housing of offenders and ex-prisoners inNorthern Ireland. The discussion is situated in the context of thedevelopment and implementation of the PBNI (2012) AccommodationStrategy. The challenges in engaging the community on offenderaccommodation are addressed. In particular the paper addresses issuesrelating to the provision of ‘approved accommodation’ (or hostels), a formof supported accommodation where offenders may be required to residefor a period in order to ‘test out’ or monitor behaviour in the interests ofpublic safety.

Does accommodation really impact on reoffending?

A range of research has shown that there is a link between stable and sustainable accommodation for offenders and ex-prisoners andpreventing reoffending.

A thematic inspection of offender accommodation in England andWales by Her Majesty’s Inspectorate of Probation (HMI Probation, 2005)demonstrated markedly higher rates of reconviction by offenders who hadaccommodation needs (29.6%) than those in the general probationcaseload (19.6%).

An offender housing survey in Avon and Somerset carried out inconjunction with Gloucestershire Probation Trust sought the views of405 offenders and found that barriers to accessing housing and relatedsupport services were experienced at every stage, from homelessnessthrough to permanent accommodation (Nicholas Day Associates,www.nicholasday-associates.co.uk). The survey found that the majority ofoffenders interviewed said they offended when homeless and stoppedwhen housed. Research also suggests that offenders in the communitywho are subject to community-based programmes are significantly morelikely to complete their programme of supervision if they live in stableaccommodation (Social Exclusion Unit, 2002).

There is limited recent local research on the impact of homelessnesson reoffending in Northern Ireland; however, the Northern IrelandHousing Executive through its ‘Supporting People’ funding stream has

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agreed that some of its budget can be used to help conduct local researchin 2014. This will be important to support the work carried out inproviding for the accommodation needs of offenders. We do know,however, that in 2012–13, for the offenders on PBNI’s caseloadcommencing supervision in the community, ‘lack of stable or suitableaccommodation’ was identified by their supervising officers as contribut -ing to the offending behaviour of some 26% of the caseload. The figurefor young offenders was significantly higher (44%).

Speaking in 2012, Peter Shanks, a Lecturer in Housing at UlsterUniversity (UU), said:

Links between homelessness and offending are well established andsuitable housing has been identified as one of the key factors that canreduce re-offending. It’s recognised that suitable and secure accom -moda tion is the main pathway for the resettlement and reintegrationof ex-prisoners and ex-offenders back into the community. Despite theconsiderable involvement of housing advice agencies and voluntarysector organisations – in terms of offering advice and support – gainingaccess to secure and stable housing remains a key challenge. (UU,2012)

The question of why access to secure and stable housing in NorthernIreland still represents a key challenge and the role that PBNI has inaddressing the accommodation needs of offenders to help provide safercommunities is now explored.

PBNI accommodation strategy

PBNI is not an accommodation provider, but over the years it has workedclosely with statutory and voluntary sector partners and local communitygroups to identify and address the accommodation needs of those subjectto supervision.

As the principal Housing Agency in Northern Ireland, the HousingExecutive is the key partner in helping to assess and address theaccommodation needs of those supervised by PBNI. The HousingExecutive’s statutory duty to homeless people is set out in the Housing(NI) Order 1988. This legislation requires the Housing Executive toassess the duty owed to homelessness presenters in relation to eligibilityfor such services as temporary accommodation and permanent housing.

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The Order also makes provision for the Housing Executive tofinancially assist voluntary sector organisations to provide a range ofservices to assist the Housing Executive in fulfilling its statutory duties.The Housing (Amendment) Act (Northern Ireland) 2010 placed astatutory duty on the Housing Executive to develop and publish a five-year homelessness strategy and to provide advice and assistance onhomelessness to the broader public free of charge.

In 2011 in consultation with partners, PBNI reviewed its Accommoda -tion Strategy to refocus on the accommodation needs of those undersupervision; to identify deficits and agency priorities; and to develop anAction Plan to maximise the opportunities for enhanced outcomesthrough existing partnerships and the development of new partners.Firstly it is important to note that the strategy acknowledges thatoffenders in need of accommodation are not a homogeneous group. Somehave more complex needs than others, particularly those who have pooremotional and physical health, women, older offenders and those fromminority ethnic backgrounds.

The strategy identified a number of key objectives, including:

• ensuring suitable moves on accommodation and providing floatingsupport to sustain tenancies

• addressing the needs of vulnerable groups including the learningdisabled and those with mental health issues

• improving access to approved accommodation for high-risk offenders.

We will now look at these in more depth.

Ensuring suitable moves on accommodation and floating supportThe Northern Ireland Housing Executive provides financial support tovoluntary organisations for support services to help offenders move onfrom approved accommodation into independent accommodation withinthe Greater Belfast area. Approved accommodation in Northern Ireland,which is discussed further below, is managed by voluntary andcommunity sector (VCS) organisations and is often used to test offenders’suitability to live independently in the community. The HousingExecutive provides this support on an ongoing basis to those who havedifficulty living independently to help sustain them in their tenancies.Such support is available elsewhere in the province through a range oforganisations, but Probation Managers in rural teams have identifiedmore consistent availability of such a service as a priority.

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In the past two years PBNI Area Mangers have developed access tonew floating support providers in areas where there had previously beendeficits in provision. Floating support is offered to people living in publicor private housing who are having difficulty keeping their accommodationas a result of their offending behaviour. As part of the project a projectworker meets with the participant to discuss the reasons for thesedifficulties and help plan a way forward. The project worker gives ongoingsupport and practical assistance to achieve this. This may include linkingup with other service providers or those providing support in thecommunity.

This is ongoing work and we are seeking to develop new partnersacross Northern Ireland to ensure the availability of floating supportservices to all offenders who are moving on from temporary accommoda -tion, leaving institutions or assessed as being at risk of not sustaining theirtenancies.

Addressing the needs of vulnerable groupsAccessing accommodation for offenders with mental health issues canpose a significant difficulty. Between 60% and 80% of prisoners inNorthern Ireland are diagnosed as having psychosis, a personalitydisorder or a substance misuse problem (Department for Health, SocialServices and Public Safety, 2010). Based on Assessment, Case Manage -ment and Evaluation (ACE) assessments conducted on 31 March 2013,around 70% of offenders on PBNI’s caseload have been assessed ashaving a drug or alcohol offending related problem. PBNI hascontributed to the NIHE Homelessness Strategy and highlighted theparticular needs of learning disabled and those with mental health issuesin the offender population. A strategic outline case for a personalitydisorder unit has been prepared with the Health Trusts and is currentlywith the Department for Justice for progression.

PBNI has also met with providers of supported housing and securedinitial agreement to develop a partnership to develop provision for thosewith a learning disability and mental health needs as well as increasingthe supply of suitable move-on accommodation from approved premises.

PBNI is continuing to help address the accommodation needs ofspecific offender groups including women offenders with complex needs,young people and foreign nationals.

The Corston report, A Review of Women with Particular Vulnerabilities inthe Criminal Justice System, published in 2007, identified housing as amajor concern for female offenders, in particular because women’s lives



tend to be more disrupted than those of men by custodial sentences(Baroness Corston, 2007). A number of barriers were identified in rela -tion to accommodation – the application process, a shortage ofaccommoda tion options and the issues relating to access to children.Other issues specific to women offenders include that their offending ismost often associated with poverty and financial difficulties and that theirfinancial situations are further strained by having sole responsibility forchildren.

As part of PBNI’s strategy, working with the Inspire women’s projectwe have increased access to female accommodation through work withvoluntary sector partners including Women’s Aid, and we are workingwith partner agencies to identify a solution for under-18s, who presentdifficulties in placing in mainstream Trust accommodation.Foreign nationals with no access to public funds present a particularchallenge to the criminal justice agencies. There are no mainstreambudgets to address this issue and it is likely that it will be a priority areaof work as the number of foreign nationals entering Northern Irelandincreases.

Foreign national prisoners represent an increasingly significant andvulnerable proportion of the prison estate in England and Wales,accounting for 13% of the population in custody (Prison Reform Trust,2010). They are ever present in the Safer Custody statistics, accountingfor nearly a quarter of self-harm incidents and self-inflicted deaths(HM Inspectorate of Prisons, 2009). Recent Inspectorate Reports(2006, 2007, 2010) and a handful of research studies outline the lackof support facing many foreign national prisoners, in terms of languageproblems, social and cultural isolation, family support, immigrationuncertainties and diversity issues. (Barnoux and Wood, 2013, p. 241)

In January 2011 there were 131 foreign national prisoners in custody inNorthern Ireland’s prisons. In a prison population of 1,477, this was 8.9%of all prisoners. It is likely that numbers will continue to increase andtherefore further research is needed on how best to assist this group withaccommodation.

Approved accommodationThese professionally run establishments work to probation-approvedstandards for offender management and are regulated by SupportingPeople, which is funding managed by the Housing Executive to support

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vulnerable people in the community. The majority of referrals to theapproved premises are for offenders being released into the communityfrom prison. They are subject to licence conditions to reside there andthese are given priority. PBNI supervises and enforces these licences untiltheir date of expiry. Each offender is risk assessed jointly by PBNI andhostel staff and other relevant partners, including the Northern IrelandPrison Service and the agencies that compose the Public ProtectionArrangements for Northern Ireland (PPANI). An individual riskmanagement plan is created and enforced for each offender for theduration of their stay.

In 2011 PBNI partners in the voluntary sector provided 76 beds foroffenders under supervision in six hostels funded through SupportingPeople. This provision was primarily in Belfast and housed people whoneeded close monitoring due to their risk of reoffending and the need toprotect the public.

Demand for AP places has increased with the introduction of theCriminal Justice (Northern Ireland) Order 2008, which created newsentences that required statutory supervision of more released prisonersthan previously. Pressure on bed spaces increased after the NorthernIreland Prison Service (NIPS) suspended its Prisoner Assessment Unit(PAU) in April 2011, as this removed around 20 beds for testing life andlong-term prisoners in the community before their release.

Over the past two years and since the PBNI strategy has been in place,the number of available beds has increased by a third (from 76 to 100),with expanded availability throughout Northern Ireland rather than justconcentrated in Belfast city centre.

Thompson House, an approved premises in north Belfast, hasundergone an extensive refurbishment programme which has increasedcapacity and ensured that the premises are fit for purpose, includingproviding additional security cameras and facilities for people withdisabilities. In 2013 the Simon Community became a partner for PBNIand it has taken over one hostel and provided offender-dedicated beds inthe North West, with plans to expand in the coming months to releasebeds in four other towns.

The Simon Community hostel in Portadown is scheduled forrefurbishment in 2014, which will further increase its capacity andimprove its estate. While PBNI currently has access to 100 beds, by theend of March 2015 it is anticipated that there will be 120 bed spaces in11/12 facilities, with all the new locations outside Belfast.



While enhancing the provision of approved accommodation it has beennecessary to engage with local communities and stakeholders to explainthe purpose and need for this form of accommodation. This has at timesbeen challenging, and local communities have not always been positive intheir response to the development of approved accommodation in theirvicinity (McGreevy, 2013). However, PBNI with partners has beencommitted to being open and transparent and engaging with com -munities.

Much of the work carried out by PBNI and partners in relation toapproved premises, including the work in engaging communities, wasendorsed by the Criminal Justice Inspection Report published in 2013.Indeed, the Criminal Justice Inspection Report on Approved Premisesstated that one of the most significant findings of this inspection had beento demonstrate tangibly that offenders reduce their risk levels while livingin approved premises.

As part of the inspection PBNI compiled data to assess residents’progress after they left the approved premises. This was done by samplingACE scores of 104 residents. ACE measures the risk of reoffending andwas the most tangible measure of progress available. Analysis of the datashows that offenders who resettled from approved premises reduced theirrisk score by an average three points while living in the approvedpremises; their average scores had reduced by a further three points bythe end of 2012. The inspection states that ‘While this progress cannotbe uniquely attributed to an AP placement, when considered alongsidethe qualitative feedback that we received, it is reasonable to surmise thatthe APs made some contribution’ (Criminal Justice Inspection NorthernIreland (CJINI), 2013, p. 24).

The data also showed that:

• the average ACE score of unsettled leavers increased by four units bythe time they left the approved premises and it remained the same atthe end of 2012

• those most likely to resettle after leaving an approved premises wereolder on arrival

• resettled residents had an overall average six months’ stay; unsettledleavers stayed for an average of five months

• significant differences in average lengths of stay were effected by a smallnumber of residents who stayed for very long periods of time.

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It is clear that much headway has been made in delivering on theobjectives of PBNI’s Accommodation Strategy; however, one area thatcontinues to pose a challenge is the public’s concern about knownoffenders, particularly sex offenders, living in the local community.Indeed, PBNI is so mindful of this area of work that it has developed anengagement and communication strategy to provide reassurance tocommunities and explain why adequate accommodation is important incontributing to community safety.

Engaging with communities

The CJINI (2013) report found that all of the Northern Ireland approvedpremises were known in their local areas; some suffered adverse attentionbecause of their role. This included damage to the property and staff cars,as well as pickets, petitions, media articles, verbal abuse and graffiti.

PBNI and partners have sought to have in place an integrated com -munications and engagement strategy to help support the developmentof the accommodation strategy. That strategy seeks to explain the keymessages around accommodation. It is clear from the evidence (CJINI,2013) that a key message to local communities has to focus on the factthat there is a much lower rate of reconviction of offenders while they areliving in approved premises (3.1%) than for offenders who accessedmainstream accommodation services (36.6%).

Reconviction rates for sex offenders are low – Ministry of Justice (MoJ)Quarterly Proven Reoffending Statistics show that ‘Between July 2010and June 2011, as in most previous years … sexual (child) offences hadthe lowest proven reoffending rate at 8.9 per cent’ (MoJ, 2013, p. 12).Previous CJI inspections have also demonstrated that sex offenders inNorthern Ireland can be effectively managed within the PPANI (CJINI,2011).

In many cases the issue raised by local communities centres solely onsex offenders and particularly those who pose a risk to children.Communities continue to ask about disclosure; some want a process of‘naming and shaming’ and have taken to social media sites such asFacebook to try to identify sex offenders in the local area.

Agencies such as probation fully understand and appreciate theconcerns of local communities about sex offenders but it is our view, andindeed the view of the Public Protection Arrangements Victim SubGroup, that the benefits of approved premises outweigh the concerns. The



strategy for PBNI and others will be to continue to engage withcommunities in an open and upfront manner in order to listen toconcerns and show them the work we do in making communities safer.

In 2013 and 2014 PBNI, along with a number of other agencies, helda series of meetings in areas including Belfast, Down, Newry and theNorth West in order to explain to public representatives and interestedparties the benefits of having sustainable and suitable accommodation inplace. These meetings at a local level are key factors in providing localbuy-in and increasing public understanding.

Conclusion

The successful reintegration of offenders into the community provides thebest solution to the reduction of further offending. We know thatoffenders are not a homogeneous group, but have different needs andtherefore there must be different accommodation solutions.

Community confidence in reintegrating offenders back into thecommunity is critical. PBNI, working with its statutory, voluntary andcommunity partners, has a proven track record in assessing and managingthe risk posed by offenders in the community and reducing rates ofreoffending.

Gaining community confidence and even greater community participa -tion in the support structures for offenders is a significant challenge forthe Probation Board. Providing support for socially isolated individualsis central to their sense of wellbeing and belonging to society and helps them sustain positive lifestyles and avoid relapse into substancemisuse and other negative behaviours which increase the likelihood ofreoffending.

Those who have committed sexual offences cause particular concernfor the community. They can, however, be effectively managed within thePPANI, of which PBNI is a core member, and reoffending rates with thisparticular client group are low. Community understanding of theextensive resources committed to these arrangements by probation andits criminal justice partners is important to the potential for increasedtolerance of approved premises where some of these offenders may betemporarily accommodated prior to placement in approved long-termresidences. Without such facilities PBNI’s capacity to protect the publicwould be significantly diminished.

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References

Barnoux, M. and Wood, J. (2013), ‘The specific needs of foreign national prisonersand the threat to their mental health from being imprisoned in a foreign country’,Aggression and Violent Behavior, vol. 18, no. 2, pp. 240–246

Baroness Corston (2007), The Corston Report: A Review of Women with ParticularVulnerabilities in the Criminal Justice System, London: Home Office

Criminal Justice Inspection Northern Ireland (2011), An Inspection of Public ProtectionArrangements Northern Ireland, Belfast: CJINI

Criminal Justice Inspection Northern Ireland (2013), An Inspection of ApprovedPremises in Northern Ireland, Belfast: CJINI

Department for Health, Social Services and Public Safety (2010), Personality Disorder:A Diagnosis for Inclusion, Belfast: DHSSPS

Her Majesty’s Inspectorate of Probation (2005), “An Essential Element of EffectivePractice”: An Inspection of National Probation Service Work on Offender Accommoda -tion, London: Home Office

McGreevy, G. (2013), ‘Probation and the role of public relations’, Irish ProbationJournal, vol. 10, pp. 90–103

Ministry of Justice (2013), Proven Re-offending Statistics Quarterly Bulletin, July 2010to June 2011, England and Wales, London: MoJ

Prison Reform Trust (2010), Prison Briefing – May 2010, available atwww.prisonreformtrust.org.uk/uploads/documents/prisonbriefingsmall.pdf(accessed 18 May 2014)

Probation Board for Northern Ireland (2012), PBNI Accommodation Strategy2011–2014, available at: www.pbni.org.uk/archive/Guide%20to%20Information/What%20are%20our%20priorities/Strategies/PBNI%20Accommodation%20Strategy%20200912%20261012.pdf (accessed 18 May 2014)

Probation Board for Northern Ireland (2014), PBNI January 2014 Caseload Statistics,unpublished

Social Exclusion Unit (2002), Reducing Re-offending by Ex-prisoners, London: Officeof the Deputy Prime Minister

University of Ulster (2012), Press Release: Meeting the Housing Needs of Ex-offenders,available at http://news.ulster.ac.uk/releases/2012/6380.html (accessed 18 May2014)



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‘Not in My Back Yard’: The Challenge of Meeting the ... · ‘Not in My Back Yard’: The Challenge of Meeting the Housing Needs of ... custody or because of restrictions in